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Taking Stock
A Look Back
4/17/2015
Prepared for
Washington County
Prepared by
Angelo Planning Group
921 SW Washington Street, Portland, OR 97203
Washington County Transportation Futures Study Page 2
Taking Stock
Table of Contents
1. Introduction ........................................................................................................................................... 3
2. Taking Stock ........................................................................................................................................... 7
1970s Transition Begins ..................................................................................................................... 7
1980s Land Use Planning Takes Hold ................................................................................................ 8
1990s Residential and Employment Expansion ............................................................................... 11
2000s Urban Form Takes Shape ...................................................................................................... 12
3. How the County Has Changed ............................................................................................................. 15
Who We Are ........................................................................................................................................ 15
Where We Live .................................................................................................................................... 17
Where We Work .................................................................................................................................. 19
How We Travel .................................................................................................................................... 20
4. Where Were Going ............................................................................................................................. 27
What will the next 20 years bring? ...................................................................................................... 27
What are our priorities? ...................................................................................................................... 34
5. Observations ........................................................................................................................................ 35
Appendix A: Western Bypass Study / LUTRAQ Draft Summary ................................................................. A1
Appendix B: MSTIP Project Map ..................................................................................................................B1
Appendix C: Capital Improvement Map ......................................................................................................C1
Appendix D: Travel Patterns Maps ............................................................................................................. D1
Washington County Transportation Futures Study Page 3
Taking Stock
1. INTRODUCTION
Washington County, its sixteen cities, and special service districts have a rich history of proactive long-
range planning and implementing strategic solutions that address complex community issues. As the
second most populous county in the State of Oregon, Washington County has been on the leading edge
of many of the development issues that have shaped the state and the region since the adoption of
Oregons nationally recognized land use planning program in 1973. Being a leader has created
numerous opportunities and challenges related to the key building blocks of a community land use,
housing, employment, transportation, and public facilities.
The county is now embarking in a project that will explore further into the future than any previous
long-range plan. The Washington County Transportation Futures Study (the Study) will develop
plausible future scenarios to determine what package of transportation solutions will help achieve the
priorities and objectives of county residents and businesses.
The Study is designed to evaluate the long-term transportation strategies and investments needed to
sustain the county's economic health and quality of life in the coming decades. It will do so by:
o Thinking big and looking far beyond the current Transportation System Plan's 20-year horizon;
o Studying the county's evolving demographic and economic conditions and associated
implications for travel needs;
o Evaluating tradeoffs from two transportation investment packages and two plausible future land
use scenarios against a range of community values; and
o Positioning Washington County for continued success in the future.
The Study results will provide a better understanding of long-term transportation needs and choices
between alternative transportation investments, as well as provide guidance for subsequent updates to
regional, county, and local plans.
An initial step is this look back on key decisions, policies,
and projects that have shaped how the county and its cities
have grown. This document will provide a review of the key
planning influences - from the 1970s to current times - that
reflect the countys planning history and provide
perspectives that can inform future development scenarios
(see Figure 1). This historical foundation will help inform and engage the public by providing:
o A common understanding of the context in which previous decisions were made, what
assumptions those decisions were based upon, and what trade-offs were considered;
o Clues regarding strategies that worked in the past and those that may not be successful in the
future;
o Documentation of the changing character of the countys population and employment base;
o Notable trends - including how people travel - that have shaped and will continue to shape the
community;
Washington County is the second
most populous county in Oregon
Washington County Transportation Futures Study Page 4
Taking Stock
o Benchmarks to help form and evaluate future land use and transportation scenarios; and
o Engagement of a large portion of the current population that was not involved in, nor is likely
aware of, the decisions that shaped their communities.
When Senate Bill 100 created the statewide land use program in 1973 there were approximately
177,000 residents in Washington County. Today there are approximately 551,000 residents.1 The
transitioning character of the county - from a rural to suburban to, in many places, urban - is the direct
result of regional land use and transportation decisions. Examples of these decisions include the
establishment of the Metro Urban Growth Boundary (UGB) in 1979 developing the land supply and
infrastructure needed for the high tech and apparel industries in the 1970s and 1980s the opening of
the Westside MAX line in 1998, and requirements for compact development to take advantage of the
accessibility and mobility offered by the light rail line. Planning efforts for setting the direction of how
the county and its cities would manage the growth during this period include the Western Bypass / the
Land Use, Transportation and Air Quality (LUTRAQ) Study, the Major Streets Transportation
Improvements Program (MSTIP), and the adoption of local comprehensive plans, concept plans, and
neighborhood plans, along with the zoning and implementing procedures that implement Metros 2040
Growth Concept.
These decisions and planning efforts have changed the face of Washington County from a traditional
suburban environment, as exhibited in residential areas such as Oak Hills and Cedar Hills, to a more
urban setting, as exemplified by the Platform District and Orenco Station in Hillsboro, the Round in
Beaverton, and the Eddyline Bridgeport in Tualatin. On the employment front, major employers such as
Intel, Nike, Columbia Sportswear, SolarWorld, and numerous other high technology and manufacturing
businesses have transformed the county into a world-class economic force. At the same time the
countys agricultural sector has remained strong, exhibiting a growth in ornamentals and landscape
materials and, more recently in the western portion of the county, an expanding winery industry.
Looking to the future the county is planning a
transportation system in 2035 to accommodate the
needs of a population of 758,500 and 382,000 jobs.
This growth represents 200,000 more residents and
122,000 additional jobs compared to today's levels, the
equivalent of adding another City of Beaverton and City
of Hillsboro. Today almost half (48.8%) of the employees working in Washington county live outside of
the county. The future growth in the county as well as anticipated commuting patterns create
challenges that will require the county and its cities to plan for adequate transportation capacity and
look for efficiencies to meet demands.
1 PSU Center for Population Research (July 2013 Population Forecast)
In the next 20 years, Washington Countys
population is expected to reach 758,500
Washington County Transportation Futures Study Page 5
Taking Stock
Figure 1 Washington County Timeline of Significant Event & Population Density
Washington County Transportation Futures Study Page 6
Taking Stock
The remainder of this
report is organized into
three sections: Taking
Stock, Where Were
Going, and
Observations.
In the Taking Stock
section well explore the
evolution of community
development patterns
and how what was
predicted has come to
pass, as well as note
what has occurred that
was unforeseen. Our
focus will be on land use and transportation decisions that shaped development patterns and the
outcomes of those decisions. Well discuss the seminal planning documents and decisions that
influenced growth and development patterns in the county, laying the foundation for todays
community.
To explain Where Were Going we will rely on recent land use and transportation policy choices, growth
projections, and desired outcomes documented in the Washington County 2014 Transportation System
Plan, the 2014 Regional Transportation Plan, and other relevant documents. This will provide an
overview of what is expected for the next 25 years as detailed in current plans and will serve as the basis
for preparing development scenarios and transportation investment packages for beyond 25 years.
Finally, well summarize
a few key observations
from what past planning
has taught us, focusing
on points that will inform
the next phase of the
Study.
The land use and
transportation planning
that has occurred over
the past 40 years in
Washington County has
created a vibrant urban
community of diverse
interests and
Figure 2 - Intel Campus/Orenco Station
Figure 3 - Bridgeport Village Area
Washington County Transportation Futures Study Page 7
Taking Stock
opportunities. The countys role in the Portland Metropolitan region as a leader and innovator in land
use and transportation planning and public service delivery is well established. The Study is an
opportunity to engage county residents and businesses in a discussion on how to build on its historical
successes to enhance opportunities and quality of life for the future.
2. TAKING STOCK
This section provides a description of key planning documents and decisions in the decades since the
1970s and an account of their collective influence on shaping development within Washington County.
1970s Transition Begins
Growth in the early 1970s was slowed by a building moratorium in Washington County imposed in 1969
by the State Department of Environmental Quality (DEQ) to address impacts to the Tualatin River. In
response to the building moratorium the Unified Sewerage Agency (USA, now Clean Water Services) was
formed in 1970. The planning and formation of USA ensured that land in the county could be developed
in a manner that minimized environmental impacts. By the end of the decade USAs service boundary
was used as one of the key factors in establishing the countys original UGB in 1979.
The statewide planning program and the Land Conservation and Development Commission (LCDC) were
created with Oregon Senate Bill 100 in 1973. The new state law required local governments to plan for
the future in a manner consistent with 14 Statewide Planning Goals. At the regional level Metro (in its
present-day form) was approved by voters in the three-county region in 1978. At that point Metro
became the first elected regional government in the United States. Its authority, among other things,
included establishing and monitoring the UGB and adopting a Regional Transportation Plan (RTP) that
required local transportation plans be consistent with the regional plan.
Late in the decade the county and its cities began the process of working with community interests to
develop comprehensive plans, zoning ordinances, and public facility plans to both comply with state
goals and articulate local planning and development objectives. This planning continued into the 1980s
concluding at different times when local land use and transportation plans were locally adopted and
acknowledged by LCDC.
From a residential perspective the typical housing type was single family in predominately low density
developments. Two subdivisions illustrate this housing pattern Cedar Hills and Oak Hills. While both
Cedar Hills and Oak Hills were established prior to the 1970s (Cedar Hills as far back as 1946) they
illustrate the low density, single family suburban development typical of new housing developments in
the 1970s. These neighborhoods have accessibility to jobs in Portland via what is now the Sunset
Highway, making them good examples of bedroom communities.2
2 On July 10, 2013, the U.S. Department of the Interior, National Park Service placed Oak Hills on the National Register of Historic Places
Washington County Transportation Futures Study Page 8
Taking Stock
On the employment front while the founding of Tektronix in 1946 and related industries are considered
the birth of the Silicon Forest the seeds of the countys high technology and apparel industry were
firmly planted when Intels first facility opened in Aloha (1976) and Nikes World Headquarters opened
in Beaverton (1972). As these and other firms expanded the need for nearby supporting services and
housing for their employees began the steady growth curve that characterized the next two and a half
decades. As one notable response to the growing population base, Washington Square (the countys
first regional shopping center) opened in 1974.
In the face of these changes the need to plan for and manage growth became an issue as never before.
State, regional, and local planning tools offered the county and its cities the ability to work with
residents and businesses to comprehensively consider land use, transportation, public facilities, and
natural resources. This comprehensive planning that followed laid the foundation for the county and its
16 cities to prepare for and manage their future for the best possible outcomes.
Washington County started the decade with a population of 158,000 (1970) and entered the next decade
with a population of 246,000 (1980).
1980s Land Use Planning Takes Hold
The planning work that started in the previous decade began to transform the county and its cities in
the 1980s as the pace of growth continued. Washington County adopted its Comprehensive Framework
Plan in 1984 followed by detailed Community Plans for unincorporated areas and the 1988 Washington
County Transportation Plan. The Comprehensive Plan included both the Framework Plan for the Urban
Area that covered unincorporated land within the UGB and the Rural / Natural Resource Element that
covered all land outside of the UGB.
The Framework Plan supported the creation of
distinct, balanced, relatively self-sufficient and
diverse communities, the form of which would
depend on the opportunities for development and
existing natural constraints unique to each area.
Implementation of this development concept
began to slowly occur with the emergence of
employment centers in Beaverton, Hillsboro, and
Tualatin. Residential development however continued to reflect more of a suburban character with
single family housing being the predominant housing type for new construction.
Public infrastructure and the provision of services became the critical issue as services tried to keep pace
with new development. In particular improvements to the transportation system were needed to both
correct long-standing deficiencies and provide the capacity new development needed. Not surprisingly
there was a lack of sufficient funding to provide these improvements.
Beginning in 1985 the county, in association with the cities of Washington County and interested groups
and individuals, began a focused and aggressive examination of a number of transportation issues facing
Consistent with guidance from Comprehensive Plan, urbanization in Washington County will
occur through the creation of a series of distinct, balanced, relatively self-sufficient and
diverse communities.
Washington County Transportation Futures Study Page 9
Taking Stock
the county. This focused examination of transportation issues came to known as the Washington County
Transportation Initiative. This Initiative intended to achieve several objectives, including:
o Establish transportation issues as a Board of County Commissioners priority;
o Articulate basic county approaches to a number of transportation issues;
o Emphasize strategic and long term approaches to transportation issues; and
o Emphasize the importance of intergovernmental coordination and public information.
The Washington County Transportation Initiative program resulted in a number of achievements,
including:
o Establishment of the Washington County Coordinating Committee as a policy and technical
coordinating body to review and provide recommendations to the cities and county on
transportation issues;
o Development of the Major Streets Transportation Improvement Program (MSTIP), which was
approved by county voters May, 1986;
o Development of the Traffic Impact Fee (TIF);
o Development of the Washington County Gas Tax;
o Development of uniform county road standards;
o Prioritization of maintenance revenue and expenditures;
o Exploration of county Service Districts for maintenance of local roads; and
o Initiation of a major update of the countys Transportation Plan.
The MSTIP was
developed as an
innovative pay-as-
you-go (through
property taxes)
program that is now
viewed as the
foundation of
Washington County's
transportation
funding strategy.
MSTIP I and II were
passed by voters in
1986 and 1989
respectively. Each
MSTIP ballot measure
identified a specific
list of improvements to be completed when the measure passed thereby providing a high level of
transparency and commitment to project delivery.
Figure 4 - Westside LRT Corridor, Final Environmental Impact Statement
Washington County Transportation Futures Study Page 10
Taking Stock
Concurrent with MSTIP the county developed the TIF program based on the principle that new
development should directly contribute to the new transportation capacity needed to serve it. The TIF
was enacted in 1986 for unincorporated Washington County only. In 1990 the TIF was enacted
countywide including application within cities. Fees were dedicated to new roadways and capacity
improvements and could not be used for maintenance. This was one of the first transportation-related
development impact fees in the nation. The TIF has contributed over $260 million in transportation
investments countywide.
The MSTIP and TIF programs represented
innovative approaches to difficult
transportation funding problems and
demonstrated a willingness on the part of
the larger community to address
infrastructure needs proactively.
In 1986 the region opened its first Light
Rail Line from Portland to Gresham
signaling a new emphasis regionally - and
an acceptance locally - to look at new
transit opportunities to not only provide
transportation capacity, but also as a tool
to manage growth. This regional effort
set the stage for the Westside light rail
planning; twelve years later (1998), the
Westside Light Rail Line to Hillsboro
opened (see Figure 4).
Also during the 1980s the increase in
vehicle traffic due to employment and
residential growth prompted the county
to look for a new north-south connection
between US 26 and Interstate 5. Known
as the Western Bypass, a wide corridor
was identified in the countys 1988
Transportation Plan as the potential
location of a new north-south facility (see
Figure 5), the exact location to be further refined through future studies. This new facility was intended
to address what many acknowledged was a lack of efficient north-south circulation within the county.
The identification of this facility in the 1988 Transportation Plan set the stage for the Western Bypass/
LUTRAQ planning effort in the 1990s.
Following the initial adoption of comprehensive plans, community plans, and implementing ordinances
planning efforts in the 1980s began to focus on growth management and providing infrastructure. This
Figure 5 - Western Bypass Study
Washington County Transportation Futures Study Page 11
Taking Stock
emphasis was part of a community conversation on the nature of growth, the focus of which was
increasingly on how to develop land more efficiently, what public facilities would be (and would not be)
required to support more efficient development, and how local agencies, if they desired, could
implement new land use patterns. As well, there was a growing awareness of environmental and natural
resource protection as growth accelerated. The cities and county began to factor natural resource
protection, the provision of parks and open space and other broader environmental values into the
planning process.
Washington County started the decade with a population of 246,000 (1980) and entered the next decade
with a population of 312,000 (1990).
1990s Residential and Employment Expansion
Driven by dramatic employment growth, the emergence of the Silicon Forest and construction of
housing needed to support increased population growth, the county and its cities began to look at ways
to manage growth and effectively meet public service needs. A number of major events influenced the
direction development took in the 1990s. These events were aimed mainly at identifying and allowing
for more efficient development patterns so that new growth could take advantage of existing
transportation facilities particularly where transit and light rail was available.
Planning in the 1990s was characterized by planning for development forms that looked different from
previous traditional suburban patterns. In 1992, the region's voters adopted the Metro charter, giving
Metro jurisdiction over matters of regional concern, particularly related to activities associated with
establishing and maintaining the UGB. In 1995, Metro adopted the 2040 Growth Concept, the
longrange plan for managing regional growth. The Growth Concept states the preferred form of
regional growth and development and includes the Growth Concept map. Consistent with this concept,
Washington County and its cities began to plan for areas of more intense activity by defining and
planning for city and community centers, nodes along corridors, employment areas, and higher density
residential communities consisting of smaller single family lots and multi-family housing options.
Adoption of the 2040 Growth Concept established a new direction for planning in the region by directly
linking urban form to transportation decisions. Development of Orenco Station in Hillsboro, which began
in 1997, is a well-known example of a new growth area guided by the 2040 Growth Concept. This mixed-
use development represented in many ways a watershed moment that marked growing acceptance of-
and a desire for- new development forms and patterns in the county. Over time this development has
transformed the area with a mix of small single family residential lots, multi-family residential buildings,
and commercial development. The infrastructure was designed to support and fit-in with the community
including thoughtfully planned pedestrian connections to a light rail transit station and throughout the
development.
Orenco Station is not the only community supported by the opening of the Westside Light Rail to
Hillsboro (Westside MAX). The opening of Westside MAX also enabled the county, Beaverton, and
Hillsboro to develop transit-oriented land use plans at the 16 transit stations between the Sunset Transit
Center and the Hatfield Government Center Transit Station. In spring 1999 daily ridership on Westside
Washington County Transportation Futures Study Page 12
Taking Stock
MAX was 19,400 riders. In 2010 Westside MAX reached 41,180 daily riders over twice the daily
ridership in 1999.
The 1990s was also the decade where the Western Bypass concept, originally identified in the previous
decade, was studied - and ultimately rejected - as a solution to the countys circulation problems. Rather
than one major infrastructure project (Western Bypass facility) the focus turned instead to improving
the existing transportation system, developing transportation options to the single occupancy vehicle
trip, and providing - through regulatory measures - land use patterns that could take advantage of
transportation options. The Western Bypass Study expanded to include the LUTRAQ land use and
transportation alternatives as a part of the transportation analysis on the west side of the Region. See
Appendix A for a more detail discussion of the Western Bypass/LUTRAQ Study, including information on
the Studys recommended projects that have been completed and not completed.
MSTIP III was passed by voters in 1995. In the late 1990s two statewide tax reform measures3 led to
MSTIP being rolled into the countys general property tax rate. However, the Board of Commissioners
has continued the commitment to the MSTIP even though it is funded through the general fund and
could be considered discretionary. Today MSTIP has resulted in $730 million invested in the design and
construction of over 130 transportation projects that residents and businesses rely upon every day
modernizing the countys major street network, supporting multimodal transportation solutions, and
improving access to jobs countywide. A map of the MSTIP projects is shown in Appendix B.
Washington County started the decade with a population of 312,000 (1990) and entered the next decade
with a population of 445,000 (2000).
2000s Urban Form Takes Shape
Steady growth in the new century saw
development filling in the vacant areas
within the UGB and a decision to add some
land to the UGB early in the decade (see
Figure 16 in Where Were Going section).
Senate Bill 1011, enacted by the 2007
Oregon Legislature, created a process for designating lands as rural or urban reserves. Designations
were made through agreements between Metro and counties as a result of a coordinated public process
with the regions cities, special districts, school districts and state agencies. In 2011 the Metro Council
and Washington County Board of Commissioners adopted, and the LCDC acknowledged, new
ordinances, plan changes and maps creating urban and rural reserves in Washington County.4 On April
1, 2014, Governor Kitzhaber signed House Bill 4078 which established new urban and rural reserves and
3 Ballot Measure 5, which directed a 1990 amendment to the Oregon Constitution, established limits on Oregon's property taxes on real estate, capping the total property tax rate at 1.5%. Measure 5 was followed up with Measure 47 in 1996 and Measure 50 in 1997. Measure 47 limited the growth of a property's assessed value to 3% maximum per year; Measure 50 clarified that measure. 4 http://www.oregonmetro.gov/urban-and-rural-reserves
In 1994, transit mode share was 1.9% within the Countys urban area, according to a Metro travel
survey. In 2011, this grew to 3.9% of all weekday trips.
Washington County Transportation Futures Study Page 13
Taking Stock
adjusted the UGB in Washington County. This action set a 50-year boundary for future urban growth on
the west side of the region and provided long term certainty on where new growth would ultimately
occur.
As growth continued the cities expanded their
boundaries to include land that was previously
unincorporated. As this occurred the cities
began to play a more prominent role in shaping
land use patterns and providing public services.
As witnessed by their increasing role in planning
the communities in the county, cities led the
projects to create concept plans for new urban areas including South Cooper Mountain (Beaverton),
River Terrace (Tigard), South and North Hillsboro, AmberGlen (Hillsboro), Tonquin Employment Area
(Sherwood), and Basalt
Creek (Tualatin and
Wilsonville).
The cities also have
looked inward to
existing, predominantly
developed areas, to
explore where
redevelopment could be
accommodated. Areas
such as Beaverton
Creekside, Sherwood
Old Town, the Tigard
Triangle, and downtown
commercial centers in
Hillsboro, Forest Grove,
and Tualatin have all been found to provide future opportunities to offer additional housing,
commercial, and employment choices. At the same time the county completed the North Bethany
Concept Plan (2009) which is now meeting the significant need for housing to support the continued
employment expansion throughout the county.
From a transportation perspective the county prepared a significant update of its transportation system
plan in 2014 that set a 20-year direction for balancing land use, transportation, and investment
decisions. The Westside Express Service (WES) commuter rail line serving Beaverton, Tigard, Tualatin
and Wilsonville opened in 2009. WES runs every 30 minutes during the weekday morning and afternoon
Westside MAX reached 41,180 daily riders in 2010 over twice the daily ridership when
MAX opened in 1998.
Figure 6 - Tualatin- Sherwood Industrial Area
Washington County Transportation Futures Study Page 14
Taking Stock
rush hour. In the fall of 2013 there were over 2,000 average daily riders on WES - a 17% increase from
the previous year.5
In 2008 voters replaced the TIF with the Transportation Development Tax (TDT), thereby ensuring the
continuation of financial contributions from new development to provide funding for projects to support
new growth.
TDT funds have been invested to design and/or build capital improvements on the TDT Project List,
including:
o NW Cornelius Pass Road to six through lanes between Highway 26 (Sunset Highway) and Cornell
Road (ROW acquisition and design)
o NW Springville Road between 185th and 173rd Avenues (design)
o SW Pacific Highway / Gaarde Street / McDonald Street Intersection Improvements
o SW Dawson Way
Washington County started the decade with a population of 445,000 (2000) and has a current
population of 551,000 (2014).
5 http://www.oregonlive.com/commuting/index.ssf/2014/01/trimet_ridership_continues_to.html
Washington County Transportation Futures Study Page 15
Taking Stock
3. HOW THE COUNTY HAS CHANGED
Washington County must provide a transportation system that is responsive to and meets the needs of a
diverse community and growing economy. Understanding the makeup of the countys residents and
businesses can provide insight on transportation needs and direction on where and on what type of
facilities to invest transportation funding.
Who We Are
The county is part of a region that is becoming more culturally diverse. The Portland-Vancouver region
minority population increased significantly between 2000 and 2010 growing from 330,000 to 501,000 in
that decade. Hispanic/Latino populations grew the most, increasing 70% over the decade, and Asian
Americans comprised the second fastest growing population in the region. International immigration
between 2000 and 2009 accounted for about 30% of the population growth in the region (see Figure 7).
Among the immigrants were highly-educated professionals in high-paying jobs and a large number of
workers with limited education in low-paying jobs. Both immigrant professional families and families
with low-income have tended to settle in or move to suburban communities where housing prices are
lower than in the Portland central city. Of the counties within the Portland-Vancouver region,
Multnomah County and Washington County experienced the greatest amount of international migration
between 2000 and 2009; fifty percent of total migration into Washington County is from international
immigrants.6 In 2010 the US Census reported that Washington County featured almost double the
proportion of foreign born residents (16.8%) than statewide (9.7%). The county also had a higher
percentage of Asian or Pacific Islander residents (8.6%) compared to the state (3.7%), as well as a higher
percentage of Hispanic or Latino residents (15.7%) compared to the state (11.7%).7
6 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 1-24 7 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 4 p. 2
Figure 7 - Washington County Race/Ethnicity
Washington County Transportation Futures Study Page 16
Taking Stock
Research done in 2014 for the
Coalition for a Livable Future
presented regional data that is
consistent with national trends: the
suburban poor population is growing
at a faster rate than that in central
cities. From 2000 to 2011 Portlands
population in poverty grew by 40%.
Across all the suburban municipalities
in the metropolitan region the
population in poverty grew by an
average of 115%, nearly three times
the rate of poverty growth in
Portland.8
The countys population is aging. In the region the proportion of people over 65 has begun to rise in
both absolute numbers and percentage of the total population. The median age in the Portland region
was 36.7 according to 2012 American Community Survey data, up from 34.8 in 2000.9 In Washington
County there is both significant youth and senior populations with 26% of residents under 18 years and
10% over 65 years of age (Figure 8).
Washington County residents are also reflecting national and regional trends related to obesity. While
Oregons obesity levels are lower than
national levels - 26.8% as compared to
35.7% of U.S. adults - obesity is still on
the rise in the State. In a recent survey
the percentage of adult survey
respondents in the greater Portland
region who reported being overweight or
obese increased between 2002 and 2010.
In 2010 Washington County had the
highest percentage of adult survey
respondents reporting being overweight
(39.2 %); Washington County also had the
highest percentage of adults who were
either obese or overweight (63.1%).10
8 The Suburbanization of Poverty in the Portland-Vancouver Metropolitan Region, May 2014, Coalition for a Livable Future White Paper Series 9 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 24 10 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 1-35
Figure 8 - Washington County Age
Figure 9 - Washington County Household Income
Washington County Transportation Futures Study Page 17
Taking Stock
Where We Live
New urban areas in the unincorporated
county that were added to the Metro
UGB in 2002 - North Bethany, River
Terrace, and portions of Cooper
Mountain - were largely planned for
residential uses. They were planned
according to Title 11 (Planning for New
Urban Areas) of Metros Urban Growth
Management Functional Plan to ensure
that growth occurs in a manner that is
consistent with regional goals as well as
County goals related to compatibility
with existing uses among others.
Modeling for the Urban Growth Report11 forecasts that the share of households made up of 1-person or
2-person households will rise. This means that, other things being equal, there may be a higher demand
for multi-family housing. An aging population also has a slightly higher affinity to shift into multi-family
development forms (although as the Census data suggests this doesnt happen until individuals are over
80 years old).
Figure 11 - Share of Regional Population
11 Oregon law requires that every five years the Metro Council evaluate the capacity of the regions UGB to accommodate a 20-year forecast of housing needs and employment growth. The results of that evaluation are provided in the Urban Growth Report; this report supports Metro Council decisions on how to accommodate future growth. The population and employment forecasts in this report are expressed as ranges, allowing the regions policymakers flexibility in choosing a path forward. The 2014 regional forecast will be reviewed and coordinated with local jurisdictions in the context of Metros growth distribution process; by May 2015 local jurisdictions interested in UGB expansions in urban reserves must complete concept plans. In September 2015 Metros chief operating officer will make a recommendation for the Metro Councils growth management decision that becomes the basis for MPAC and council discussion. By the end of 2015, if any additional 20-year capacity need remains, the Metro Council will consider UGB expansions into designated urban reserves.
Figure 10 - Washington County Housing Type
Washington County Transportation Futures Study Page 18
Taking Stock
Economic factors, in particular household income, play a function in determining tenure and the choice
between single-family or multi-family development forms (see Figure 9). The regional economic forecast
predicts proportionally fewer middle-income bracket households and families, meaning a
disproportionate rise in the number of lower income households, which results in a slight increase in
multi-family rental demand.
Regionally there also is a rise in the very high-income
brackets predicted in the net change in households.
Disproportionate increases in the number of high
income households show up in higher home
ownership - potentially as much as 65% - as compared
to the 2010 Census which rang up 60% own and 40%
rent.12
Despite trends and forecasted demand there is
currently a strong preference for single-family
residential (see Figure 10). An innovative Housing
Preference Survey was conducted by Metro,
Washington County and other regional partners in
2014. This survey was intended to be more realistic
than a simple preference survey by collecting
information about respondents housing choice
considering trade-offs for price, square footage,
ownership, and commute times. Important findings
from the survey include the fact that single family
homes are the most preferred options, people are
least sensitive to commute time of all the trade-offs,
and most people would prefer to live in a
neighborhood that has some amenities within walking
distance. Potential implications for Washington
County include price increases for single family
housing and /or that more people will commute in
from satellite communities.
12 Draft 2014 Urban Growth Report Appendix 4, p. 32
Figure 13 - Washington County Share of Single-family Housing within Region
Figure 12 - Washington County Share of Multifamily Housing within Region
Washington County Transportation Futures Study Page 19
Taking Stock
Where We Work
In 2013 Washington County was home to over 232,000 jobs and the highest average weekly wages in
Oregon.13 A high concentration of those jobs has grown around centers and corridors in Washington
County (Figure 14). Economic Activity Centers include employment land (such as North Hillsboro and the
Tualatin-Sherwood Corridor) and
regional centers (including downtown
Beaverton, downtown Hillsboro,
Tanasbourne-AmberGlen, and
Washington Square). Freight
connections safe, reliable, and
efficient access for the transport of
goods are a key component of
planning for future transportation
needs for the movement of goods and
economic growth. Increased
congestion has added to delay for
trucks and goods movement, resulting
in congestion and travel delays that
cost money and force changes in
business operations and location
decisions.14
For Washington County employers,
having access to the regional labor
market is just as important as moving
goods or services. Part of a companys
location decision is based on having a
sufficient pool of talented workers be
able to reach that location within a
reasonable travel time of their homes
and by multiple modes if possible.
Employers count on Washington
County and its partner jurisdictions to
provide an efficient, reliable
transportation system so that
13 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 6 p. 1 14 Economic Impacts of Congestion on the Portland-metro and Oregon economy, Portland Business Alliance, Port of Portland, Association of Oregon Industries, Metro, Oregon Business Council, Oregon Business Association, ODOT 2014, p. 1
Figure 14 - Washington County Employment Density
Washington County Transportation Futures Study Page 20
Taking Stock
employees are willing to take jobs here and are able to get to work on time. Roadway congestion and
poor transit service can both negatively affect employers access to labor.
In rural Washington County agriculture, forestry, and tourism contribute significantly to the economy.
Washington County ranks in the top five Oregon counties for gross sales of greenhouse/nursery
products, wine grapes, and cane berries and hosts thousands of acres of timber and recreation land in
the Coast Range. Tourism augments these rural economic activities when people visit farm stands,
wineries, and recreational destinations.
The regional job market has been slow to respond to economic stimuli and is just now back to pre-
recession levels.15 Oregons unemployment rate dropped to 6.7% in December 2014, the lowest level
since August 2008 (right before the worst days of the financial crisis which led to the Great Recession.)16
Job growth in the region over the last ten years has been in high-wage jobs including hi-tech and low-
wage jobs including retail and hospitality.17 While Washington Countys job growth rate isnt where it
was pre-recession the county has seen an 11% increase since 2010, a greater increase than was seen in
Multnomah or Clackamas counties during the same period.18
How We Travel
Washington Countys transportation system includes over 1,300 miles of county roads as well as nearly
1,000 miles of state or city roads all shared by motor vehicles, bicycles, pedestrians, trucks, and public
transit. 19 The countys roadway system includes a wide variety of roadways from major urban arterials
to gravel rural roads. The Roadway Element of the Washington County Transportation System Plan (TSP)
identifies an integrated multi-modal network of complete streets that provides an interconnected
transportation system for all modes and users.20 As of 2012, 56% of arterials and collectors in the urban
area have a sidewalk on both sides. Within the county, 38% of major streets have bi-directional bike
lanes, buffered bike lanes or cycle tracks. Over half - 69% - of households are within mile of high-
capacity transit or frequent service bus, or within mile of regular or peak hour bus lines.
Time spent commuting increased in the Portland-Vancouver region between 2000 and 2012. While most
commuters (65%) spent less than 30 minutes commuting to work the share of people in the region who
commute for more than 30 minutes one way increased, which reflects changes in congestion and/or
changes in residence location compared with that of job or school. The average commute time in the
region remained constant at 25 minutes between 2000 and 2012. Nationally the average commute time
15 Draft 2014 Urban Growth Report, Appendix 1a, Page 2 16 Oregon Employment Department, http://www.oregon.gov/EMPLOY/Agency/Pages/News-Releases.aspx#release?id=20 17 Christian Kaylor, Oregon Employment Department, January 2015 presentation to Department of Land Conservation and Development 18 Christian Kaylor, Oregon Employment Department, January 2015 presentation to Department of Land Conservation and Development 19 See Appendix C for a current map of transportation projects completed and committed between 1985 and 2015. 20 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 783, August 26, 2014, p. 1
Washington County Transportation Futures Study Page 21
Taking Stock
remained constant at 25 minutes during this same period.21 In 2012 Washington County residents had
the shortest commutes in the region by a small margin. All four counties in the Metro area saw a
decrease in the share of its residents leaving the county for work. Washington County decreased by 2
percentage points in the share of residents commuting to another county.22
According to national trends travel for non-work purposes, such as shopping, errands, and recreation is
growing faster than work travel. The National Household Travel Survey found that in 2001 a majority of
peak period person trips in vehicles are not related to work. Looking at an average weekday, non-work
travel comprises 56% of trips during the morning rush hour period and 69% of trips during the evening
rush hour period. As of 2001 the average American was taking approximately four more trips a week for
non-work purposes compared to 1990.23
An important travel characteristic of Washington County is its bi-directional commute patterns.
Washington County has a strong jobs base that attracts workers from elsewhere in the Portland region.
Washington County also has the more traditional suburban role of providing housing for people who
commute to Portland. Commutes also include trips that remain entirely within Washington County. As
shown in Table 1, in 2010 nearly half of Washington County residents worked outside the county; and
nearly half of employees that work within Washington County lived outside the county.24
Table 1 - Commuter Residence Characteristics - 2002 & 2010
Washington County 2002 2010
Employee Population (Residents) 215,901 216,424
Employment (Jobs) 213,028 222,588
Employees Living Outside of County 43.7% 48.8%
Residents Working Outside of County 44.5% 47.4%
Commute patterns have shifted only slightly since 2002 with a smaller percentage of people living and
working in Washington County (see Table 2).
Table 2 - Commute Patterns (Inter-Regionally)
Washington County 2002 % 2011 %
Live & Work in County 119,835 39% 120,083 35%
Work in County & Live Elsewhere 93,193 30% 118,016 34%
Live in County & Work Elsewhere 96,066 31% 104,188 30%
21 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 52 22 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 53 23 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 53 24 Washington County Transportation System Plan 2014, Existing Conditions Table 2-18
Washington County Transportation Futures Study Page 22
Taking Stock
Changes in traffic flows are much more dramatic when comparing the difference between 1985 and
2010 travel patterns. Travel patterns have changed significantly and reflect the significant growth in the
county, especially in areas north of Hwy 26 and south to Sherwood and Tualatin. To highlight this
growth, between the Sherwood-Tigard-Tualatin area and Beaverton, traffic volumes increased over
2,000 percent during these years. Illustrations of these changes are in the appendix.25
Traffic Volume Trends
We examined historic trends historic trends alongside previous forecasts in order to properly assess
what was realized on the countys roadway network.
As can be seen in Table 3, roadways can be categorized in three ways; roadways where traffic volumes
are steadily growing, roadways where traffic volumes have stabilized, and roadways where traffic
volumes are steadily declining.
When assessing Washington County as a whole, average daily traffic (ADT) volumes have steadily
increased over the past 20 years. This is typical of growing suburban areas. One example of this growth
is 175th Avenue just north of Scholls Ferry Road, where over the past 20 years; volumes have almost
quadrupled from an ADT volume of just fewer than 2,500 in 1994 to an ADT volume just under 10,000 in
2014. This large level of growth is typical of roadways that provide access to the fringe of the urban
area. As the urban areas push into rural areas, the fringe roadways experience large growth.
There are select roadways that have shown a relatively steady decline in ADT over the past 20 years.
This trend is typical of areas where the available capacity of alternative parallel roadways has been
increased while the capacity of the specific roadway has remained constant. Murray Road just north of
TV Highway is an example of this steady decline in ADT.
There are many roadways in the countys system that has been at or near their capacity for the past 10
to 20 years. These roadways typically do not show growth in ADT volumes if they have not been
improved and, conversely, do not show a decline if other parallel facilities are not being improved. An
example of a roadway that has had relatively constant ADT volumes over this timeframe is Cornell Road
just east of 93rd Avenue.
25 Traffic volumes between different areas within the county and to/from the county in 1985 and 2010 and the
difference between the forecasted patterns for 2005 compared to actual volumes in 2010 are included in Appendix
D.
Washington County Transportation Futures Study Page 23
Taking Stock
Table 3 Average Daily Traffic (ADT) Trends
How Accurate Were We 30 Years Ago?
In understanding the ability of traffic engineers to predict future traffic volumes, we acknowledge
experts use what tools they have at a given point in time to look at what a future where there is no
prescriptive way to account for how humanity will act, what they will drive, or how much congestion
they will endure. This underscores the value of looking back in order to inform how future land use and
transportation scenarios will be developed for the Study.
The Background Report for the 1988 Washington County Transportation Plan included 2005 forecasted
volumes on many roadways within Washington County. When those volume predictions are
aggregated, the forecasted volumes for 2005 exceeded the 2008 counted volumes, but not by much -
less than 3%. While the overall aggregated forecast is very consistent with the realized volumes, the
two vary widely at a few locations such as Cornelius Pass Road and Roy Rogers Road. The forecast
assumed a facility within the area known as the western bypass study area capable of carrying 3500
vehicles per hour. The model overestimated demand for this facility and underestimated demand on
other facilities, such as Roy Rogers Road.
Forecasts of future traffic volumes depend heavily on forecasts of future land use development and
transportation facility assumptions.
Another trend in how we travel is in our vehicle miles traveled per capita. In 1990 VMT/capita was
approximately 19 miles/capita. Between 1990 and 1995, daily vehicle miles traveled (VMT) per capita
increased significantly nationally as well as in the Portland metropolitan region. During the past 18
years, implementation of the regions integrated transportation and land use planning strategythe
2040 Growth Concepthas resulted in 15 percent fewer miles driven per capita and less time spent
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
Ave
rage
Dai
ly T
raff
ic (
AD
T)
Cornell (E of 93rd) Murray Blvd (N of TV Hwy) 175th Ave (N of Scholls Ferry)
Washington County Transportation Futures Study Page 24
Taking Stock
commuting than the national average. As a result, $2.5 billion is circulating in our economy every year
that would otherwise have left the region. Between 1996 and 2008, the last year for which national data
is available, daily VMT per capita declined in the region by 14 percent.26
Cars and trucks arent the exclusive mode of travel in the region and Washington County has been
planning for more transit and facilities for walkers and cyclists. Regional bus service is provided by
TriMet, with connections to South Metropolitan Area Rapid Transit (SMART) in Wilsonville and
GroveLink in Forest Grove. TriMet services in the county include 29 bus routes, one light rail line
(including two routes), a commuter rail line, and 1,993 transit stops. The TriMet service district extends
west to Forest Grove, north to Bethany and south to Sherwood. In spring 2012, TriMet recorded an
average of 114,331 weekday boardings and alightings (ons/offs) at Washington County transit stops
during its quarterly passenger census, accounting for 17% of ons/offs system wide.27 Through the
Southwest Corridor Plan, planning is underway for additional high capacity transit (HCT) connections
between downtown Portland and Tualatin via Tigard in the Southwest portion of the region.
TriMets commuter rail service between Wilsonville and Beaverton in Washington County, Westside
Express Service or WES, began operation in 2008. This service provides connections to other transit
service providers, including SMART, Canby Area Transit, and Cherriots/Salem-Keizer Transit. With a
growing population of seniors the need for demand response services is expected to grow. In
Washington County, TriMet as well as the non-profit provider Ride Connection, Inc. provides and
coordinates transportation options for seniors and people with disabilities.
In 2012 TriMet began a community engagement process to help shape a shared vision for the future of
transit in the region. The objective was to identify stakeholder needs, both existing and future, and to
propose how to restructure current service and design new service to meet those needs. The visions and
recommendations that result from the Service Enhancement Planning process are intended to guide
how TriMet provides transit service in the future and are the basis for the improved transit service
envisioned in the Climate Smart Communities Scenarios project.
The first in a series of these planning efforts focused on Beaverton, Hillsboro, Cornelius, Forest Grove,
and unincorporated Washington County, including Aloha/Reedville, Bethany, Rock Creek, Cedar Mill,
and Cedar Hills. The Westside Service Enhancement vision identifies areas for future service and
opportunities to partner with jurisdictions and the private sector for access to transit improvements
including biking and walking to bus lines and MAX. This represents an almost doubling of service
currently provided in the area. While it will take years to implement, the vision provides a guide for how
to improve service each year.28 TriMet is now finalizing a similar Service Enhancement Plan for the
regions Southwest Corridor.
26 2014 Regional Transportation Plan, Chapter 1 Changing Times, p 51 27 Washington County TSP 2035, Existing Conditions and Future Needs Report, Chapter 4, January 2013 Draft 28 2012 Regional Transportation Plan, Chapter 2 Vision, p 41
Washington County Transportation Futures Study Page 25
Taking Stock
TriMet, SMART, and Transportation Management Association employer outreach programs have made
significant progress on reducing drive-alone trips. Since 1996 employee commute trips that used non-
drive-alone modes (transit, bicycling, walking, carpooling/ vanpooling, and telecommuting) rose from
20% to over 39% among participating employers.29
In 2010 47.9% of trips in Washington County were made by a single-occupancy vehicle. County-wide,
including rural areas and all trips, not just commute trips, only 1.8% of trips were on transit, 4.4%
walking, and 0.9% on a bicycle.30 Consistent with the growing focus around the region to increase non-
motorized modes of transportation, Washington Countys recent updates to the Comprehensive
Framework Plan for the Urban Areas and the TSP have included a greater emphasis on active
transportation and transit. Sidewalks were not universally required in older areas of unincorporated
Washington County, resulting in areas that do not provide good pedestrian connectivity. The countys
current growth management strategy is to require all new development to construct street and sidewalk
improvements that are adjacent to, or that cross, their development site.31
Pedestrian, bicycle, and transit components have been part of every major update to Washington
Countys TSP but the county has some notable recent targeted planning efforts to address safety,
connectivity and other active transportation needs and opportunities including: Washington County
Pedestrian and Bicycle Plan (2010), The Washington County Bicycle Facility Design Toolkit (2012), and
the Washington County Bicycle and Pedestrian Improvement Prioritization Project (2013). Most
recently, the Washington County Neighborhood Bikeways Plan, which was developed concurrent with
the TSP, identifies low-volume, low-speed neighborhood streets in the urban unincorporated area that
can accommodate a wide-array of bicycle comfort levels.32
Safety improvements for all users of the roads have been an important goal for cities and the county.
Tens of thousands of vehicles traverse Washington County roads on a daily basis and the vast majority
of those trips are without incident. However, there are some locations that tend to have an increased
rate of crashes. Metros State of Safety 2011 Report reveals that in 2007 through 2009, urban
Washington County had the lowest rate of injuring crashes per capita, the lowest rate of fatal or
incapacitating crashes per capita, and the lowest rate of fatal or incapacitating crashes per vehicle miles
travelled, compared to urban Clackamas County, the City of Portland, and east Multnomah County.33
Looking at trends over time, crash rates for all modes (except motorcycles) are continuing to decline
locally, regionally and nationally after peaking in the 1990s.
29 Climate Smart Strategy, December 9,2014, p. 24 30 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 3 p. 4 31 Washington County Comprehensive Framework Plan for the Urban Areas, Policy 44 Managing Growth in New Urban Areas 32 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 13 p. 2; Washington County TSP 2035, Existing Conditions and Future Needs Report, Chapter 4, January 2013, Draft Table 4-2: Active Transportation Trips and Mode Share, Washington County, 2010 33 Metro State of Safety 2011 Report, p 14, Metro.
Washington County Transportation Futures Study Page 26
Taking Stock
These and other county strategies and related investments will help the region meet 2035 targets of
increasing walking, biking, and transit mode share and increasing access to daily needs via bicycling and
public transit.34 Consistent with a regional shift from primarily using a single measure of meeting
transportation needs, such as roadway level-of-service, the county is using a broader multi-modal policy
framework in the current TSP to define system needs.
34 See Table 2-3 Regional Transportation Performance Targets, 2014 Regional Transportation Plan, and Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 11, p. 1
Washington County Transportation Futures Study Page 27
Taking Stock
4. WHERE WERE GOING
What will the next 20 years bring?
Planning for Housing
The next 20 years are going to bring more people, more employment, and more traffic to Washington
County. Metros recent growth forecast, summarized in the 2014 Urban Growth Report, estimate that
the metro area will see an additional 300,000 to 485,000 people and 85,000 to 440,000 jobs by 2035.
The range forecast takes into account factors that may lead to low or high population growth. The
range is wider for the job forecast because employment is more variable than population.
Figure 15 - Unincorporated & City Population in Washington County
Recent regional planning provides some indication of how and where the County will accommodate this
future growth. Washington County and its cities will continue to plan their land use designations and
transportation investments in accordance with the 2040 Growth Concept, concentrating mixed-use and
higherdensity development into centers, station communities, and main streets, and connecting
them with multi-modal transportation corridors.35 The next 20-years worth of growth in the county will
be concentrated in existing urban areas, as well as the urban reserves that ring its UGB (Figure 16). Rural
35 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 7 p. 1
Washington County Transportation Futures Study Page 28
Taking Stock
reserves also have an important role to play in the shape of the region, as these areas will not be
urbanized over the 20-year planning horizon.
Title 11 Urban Growth Management Functional Plan requires that a concept plan be developed for
designated urban reserve areas that will ultimately be under a citys jurisdiction prior to their addition to
the UGB. Concept plans have been developed for South Hillsboro, North Hillsboro, South Cooper
Mountain, River Terrace, and Basalt Creek. Areas that were just designated urban reserves in 2014 near
Forest Grove, North Plains, Cornelius, and Hillsboro will go through a similar planning process. Recent
concept planning has primarily been to accommodate residential growth, with the exception of Basalt
Creek, near Wilsonville and Tualatin, and North Hillsboro, where land has been designated for industrial
uses.
Figure 16 - Urban Growth Boundary Expansions & Urban/Rural Reserves
From the Regional Framework Plan we know where to expect future residential growth; what this
residential growth looks like has a lot to do with housing demand and preference. As discussed earlier,
Metros forecasts show increasing use of multi-family housing to meet demand, with net new housing at
60% multi-family and 40% single-family. This split is similar to Washington Countys recent building
trends. However, the overall housing stock in Washington County is predominantly single family and is
expected to remain that way over the forecast period.
Washington County Transportation Futures Study Page 29
Taking Stock
Planning for Jobs
According to the Draft 2014 Urban Growth Report the national outlook projects much lower U.S. Gross
Domestic Product (GDP) growth as compared to the 2009 regional forecast. Less GDP growth means
lower job growth expectations for the U.S. job market and the regional job outlook. The population and
labor force in the region has continued to grow but with weaker-than-expected job growth. The weak
job market has hurt recent graduates and younger aged workers the most and their lack of engagement
in the real economy is expected to have a long-lasting impact that will dampen the economic recovery.36
These are some of the assumptions that underlie the baseline growth forecast where surpluses are
shown for industrial and commercial need for the next 20 years (2015 to 2035). This indicates that
employment needs will be accommodated largely within existing commercial and employment area or
within urbanizing areas, consistent with adopted concept plans. However, it is possible that if the region
experiences high growth there could be a deficit of employment lands.37 The 2014 Urban Growth
Report finds there are only two areas in urban reserves (near Boring and Tualatin) that may be suitable
for eventual industrial use. There is an on-going regional discussion regarding the need for large
industrial sites. However, the demand analysis found there is a projected surplus and expects the
findings of the Urban Growth Report to inform the level of effort that the region will apply to making its
existing large industrial sites development-ready.38
Transportation Planning
How will Washington County residents and commuters coming from elsewhere in the Metro region get
to jobs, goods, and services in the future? The recently updated Washington County TSP 2014
documents the countys transportation needs and priorities. The TSP embodies transportation system
goals, objectives, and strategies and includes a set of maps identifying specific recommendations for all
elements of the county's transportation system, including public transit, bicycles, pedestrians, freight,
and the functional classification and desired number of lanes on county roads.
The TSPs Roadway Element identifies nine Refinement Areas that need further study, work that is
expected to occur through a transportation planning process, capital project development, or the land
development process. Two regionally significant refinement areas include the I-5 to Highway 99W
Refinement Area and Tualatin Valley Highway Refinement Area.
The I-5 to Highway 99W Refinement Area is a broad, east-west corridor located within the southern
boundary of Washington County and northern boundary of Clackamas County that is based upon
recommendations from the I-5 to 99W Connector Study completed in 2009. Instead of a limited access,
I-5-99W expressway connector in the southwest portion of the Metro area (between the cities of
Tualatin, Sherwood, and Wilsonville) as recommended in the Western Bypass/LUTRAQ Study, the I-5 to
99W Connector Study recommended distributing traffic across the network and a variety of
36 Draft 2014 Urban Growth Report, Appendix 1a, p. 2 37 Draft 2014 Urban Growth Report, Appendix 6, p. 15 38 Draft 2014 Urban Growth Report, p. 24
Washington County Transportation Futures Study Page 30
Taking Stock
transportation investments to improve the area's roadway, transit, bicycle, and pedestrian system.
Among other system improvements, the Connector Study proposed a new Southern Arterial within
the I-5 to 99W Refinement Area and established eight conditions, later incorporated into the RTP, that
need to be addressed before the proposed Southern Arterial can proceed to construction. Amongst the
conditions are the need to resolve access between the proposed new arterial and I-5, and to carefully
consider and coordinate subsequent facility planning with land use planning, and goal exceptions that
may be required by Metro, Washington County, and Clackamas County. Some of the Connector Studys
regional conditions can be met within the land use planning for the UGB expansion areas and/or Urban
Reserves areas. The Basalt Creek Transportation Refinement Plan refined some of the recommendations
of the I-5 to 99W Connector Study and the RTP, generally for the area between 124th Avenue on the
west, and I-5 on the east. One of the recommended projects is the 124th Avenue extension in the Basalt
Creek area. Construction will start on this in 2015.
A refinement plan for Tualatin Valley Highway (Maple Street to Cedar Hills Boulevard) and surrounding
areas, called the TV Highway Corridor Plan (TVCP), was completed in 2013. The TVCP was a joint effort
between ODOT, Metro, the City of Hillsboro, the City of Beaverton, and Washington County that focused
an examination of the transportation system to identify needs and recommend improvements for all
modes of transportation. There are still two outstanding sections of the corridor to be studied; within
Beaverton (OR 217 to SW Cedar Hills Blvd) and from Hillsboro (west of SE 10th Avenue/Maple Street) to
Forest Grove. A number of improvements are identified in this corridor, including HCT, to address
existing deficiencies and safety concerns and serve increased travel demand.39
In the future the traveler in Washington County will more likely be taking advantage of improvements
that arent meant solely for a car or truck. New and improved connections, with rare exception, are to
be implemented as complete streets within the urban area. Complete streets are roadways designed
and operated with all users in mind people walking, bicycling, using mobility devices, transit, cars,
motorcycles, and freight vehicles where appropriate. Complete streets accommodate the safe,
comfortable, and convenient movement of people of all ages, abilities, and means.40
Implementing existing long-range plans those of the county and its cities - will help to create more
active and healthy communities. The 2014 Climate Smart Strategy41 showed that if communities can
fully invest in the plans they have already adopted for themselves, the region will meet many regional
goals associated with clean air and water, transportation choices, healthy and equitable communities,
and a strong economy while at the same time exceeding the state's target for reducing greenhouse gas
emissions. Washington County was an active participant in developing the Climate Smart Strategy and
intends to pursue near-term actions identified in the associated tool box of possible actions, including
continuing technical assistance for concept planning in new urban areas, participation in the
39 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 783, August 26, 2014, Exhibit 4 p. 9 40 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 13 p. 2 41 http://www.oregonmetro.gov/public-projects/climate-smart-strategy/strategy-elements
Washington County Transportation Futures Study Page 31
Taking Stock
development of TriMet Service Enhancement Plans, and continuing to implement the active
transportation components of the newly updated TSP.
Active transportation investments those aimed at non-motorized forms of transportation including
walking and biking have become a growing focus around the region and comprise over one third of all
projects in the RTP. This is, in part, in response to the aging of the population. In 2012, about 13.1% of
the population in the Portland-Vancouver area was over 65; by 2030, that number is forecasted to be 17
percent. By 2035, the last of the baby boomers will all be of retirement age and the leading edge of the
Gen X generation (born 1965 to 1985) will also be entering retirement.42 An aging population requires
transportation facilities equitably designed to serve people with a range of physical abilities.43
Bicycle, pedestrian, and transit transportation needs and priorities are included in the Washington
County TSPs Active Transportation Elements. The TSP identifies HCT Study Corridors (shown in Metros
2010 Regional High Capacity Transit System Plan 2035) as requiring further refinement and coordination
among all affected jurisdictions in order to determine the location, transit mode, and right-of-way needs
associated with each corridor.
The Southwest Corridor and WES commuter rail service improvements (to 15minute allday service) are
identified as near term regional priority corridors, ones currently most viable for implementation.
Identification of a preferred alignment and mode-share is underway for the Southwest Corridor as this
report is being published.
Similarly a long-term transit solution for Tualatin Valley Highway has yet to be identified. Refinement
planning for HCT in the TV Highway Corridor between Hillsboro and Beaverton is a key recommendation
of the 2013 TV Highway Corridor Plan. The Transit Element map (Figure 18) shows the corridor as a wide
line that includes TV Highway, the adjacent Portland & Western Railroad, and several other potential
routes. An HCT Study is needed to determine the transit mode, location, and right-of-way needs for
future HCT along TV Highway.
42 Draft 2014 Urban Growth Report Appendix 4, p. 7 43 2014 Regional Transportation Plan, Chapter 1 Changing Times, p. 24
Washington County Transportation Futures Study Page 32
Taking Stock
Transportation Demand
Management (TDM)
strategies and programs
have taken on increased
importance and emphasis
recently due in part to
greater interest in improving
air quality and awareness of
the relationship between
active transportation and
health. TDM is the general
term used to describe any
activity that provides an
alternative to single-
occupant-vehicle trips such
as ridesharing (e.g., car- or
van-pooling), transit use
(e.g., fare subsidies), or
bicycle commuting (e.g., on-site showers, lockers or bike parking). The State of Oregon requires
employers with more than 50 employees to have programs in place that reduce the percentage of
employees who drive alone to work. Since 1997 the Westside Transportation Alliance (WTA) has worked
with its partners and Washington County employers to offer workplace services and programs that help
employees commute to work by transit, carpool, vanpool, walking, and biking. Recently the WTA
expanded its focus to include business services such as last mile connections and creation of bicycle
parking resources.44 WTA programs reduced the total miles driven by 2.1 million in 2011.45
In a climate of restricted funding, the countys Intelligent Transportation System (ITS) Plan will play a
greater role in ensuring that the countys roadways function in a manner that is safe, efficient, and cost
effective. Improving the safety, security, and movement of goods, people, and services for all modes of
the transportation network by using advanced technologies, coordinated management techniques, and
by real-time traveler information requires cooperation between Washington County, ODOT, and local
agencies. The ITS plan articulates that the management and operations of the integrated multi-modal
network necessitates a combined strategy of capital projects, use of technology, and public
transportation.46 Coordinated efforts are underway to implement smart signal and communication
technologies in several corridors within the County and, in partnership with ODOT, to improve access to
for freight mobility with improvements to the Portland Airport air freight facilities.
44 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 10 p. 2-3 45 Climate Smart Strategy. Employer-based commuter programs case study 2014 http://www.oregonmetro.gov/public-projects/climate-smart-strategy/project-library 46 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 783, August 26, 2014, Exhibit 5 p. 2
Figure 17 - Metro RTP Financially Constrained 2040 Congestion Map
Washington County Transportation Futures Study Page 33
Taking Stock
In advance of this transit
study development along
Tualatin Valley Highway the
county will consider land-
preservation opportunities
for possible future Business
Access and Transit (BAT)
lanes in the westbound
direction and bus pullouts in
the eastbound direction.
(BAT lanes would not be
intended as general purpose
through lanes.)47
The TSP identifies capital
projects which include
improvements that expand,
enhance, or extend the
current transportation system; the 2014 Regional Transportation Plan (RTP) includes the countys
priority projects. It is clear from the 2014 RTP project list that additional revenue sources are necessary
to adequately serve planned land uses. The RTP seeks to address both federal and state requirements.
To meet Federal requirements, the plan must demonstrate financial constraint, ensuring that the
system of projects will not exceed reasonably expected future revenue (Figure 17). The Financially
Constrained System represents the most critical transportation investments for the plan period. The
state requirement for the RTP is to develop a plan that is adequate to serve planned land uses. The
state RTP Investment Strategy, represents additional priority investments that would be considered if
new or expanded revenue sources are secured (Figure 18).48 A number of projects that are significant
for maintaining or enhancing the countys transportation system fall into the second category.
Many of the unfunded improvement projects are critical to north/south connectivity, including
improvements identified for the Murray/TV Highway intersection and Cornell Road, roadways that
provide access to Hillsboros industrial center and capacity improvements to Greenburg Road, Hall
Boulevard and Scholls Ferry Road. Other significant projects that are not funded through existing
revenue sources include widening OR 99W to 6 lanes from Cipole to the Tualatin River, Highway 217
improvements, enhancing this facility to a 6 lane freeway, 185th Avenue corridor intersection
improvements to enhance north-south mobility and Westside MAX operations, and the I-5/99W
Connector Southern Arterial.
47 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 783, August 26, 2014, Exhibit 4 p. 9 48 2014 Regional Transportation Plan, Chapter 3 Investment Strategy, p. 3-1
Figure 18 - Metro RTP State 2040 Congestion Map
Washington County Transportation Futures Study Page 34
Taking Stock
Given these critical system needs, and that transportation needs appear likely to continue to outstrip
available funding resources, funding transportation projects will continue to be a priority. The TSP
describes the challenge going forward as two-fold: 1) to make the best use of existing resources, and 2)
generate the interest and support necessary to provide additional resources to implement the
transportation systems and services that Washington County residents and businesses desire.
Washington Countys transportation system funding currently uses a variety of different measures. The
main principle of these measures has been the creation of a sustainable funding program to implement
improvements over time. Capital improvement projects may be funded from a variety of federal, state,
and local funding programs. The ongoing countywide transportation funding programs, such as the Gas
Tax, Urban Road Maintenance District (URMD), and Major Streets Transportation Improvement Program
(MSTIP) are consistent sources of revenue that can be programmed over a period of time.49 New
development not only pays Transportation Development Tax, but is also responsible for improvements
that serve the development.
What are our priorities?
Overarching County priorities can be found in the Comprehensive Framework Plan for the Urban Area
(Washington County Comprehensive Plan, Volume II) which includes policies and strategies that are
designed to address growth and development issues inside of the UGB. The overall goal of the county-
wide development concept is to create a series of distinct, balanced, relatively self-sufficient, and
diverse communities throughout the urban portion of Washington County where the opportunity exists
for residents to have easy and energy-efficient access to work and shopping. As articulated in adopted
policy documents, the county aspires to create a multi-modal transportation system to provide for intra-
community and inter-community movement of people, goods, and services.
49 Washington County Transportation System Plan 2014, A-Engrossed Ordinance No. 768, August 20, 2013, Exhibit 16 p. 1-2
Washington County Transportation Futures Study Page 35
Taking Stock
5. OBSERVATIONS
A number of lessons can be gathered from the information provided in the Taking Stock report. These
include:
o Washington County has historically met or exceeded local and regional population and
employment forecasts. This has created demands to provide transportation infrastructure at a
faster pace to provide needed capacity.
o Land use planning over time has responded to changing community values and economic
conditions by providing varied housing types and focusing new development into neighborhood
and community centers and along major transportation corridors.
o In recent years there has been more emphasis on multi-modal transportation solutions (transit,
bicycle, pedestrian) and providing transportations options to the growing community. Major
transit investments such as the Westside MAX and frequent service transit corridors have been
used as growth management tools to focus higher density residential to areas where
transportation choices are available.
o Roadway improvements are still critical as the county and cities respond to the mobility needs
of residents and businesses. Access to employment areas, employee commuting, and freight
delivery are critical elements of the transportation system that need further improvements.
o Increased congestion will have direct impacts on freight movement and mobility in the future as
reliability on key freight routes become increasingly congested and less reliable for time-
sensitive movements.
o Previous planning efforts have identified the need to enhance north-south circulation within the
county. Efforts to address this have been slow to materialize. Deferred attention to the north-
south circulation issue has led to increased volumes on roads in existing neighborhoods and
rural areas.
o The coordinated county / city transportation financing program as illustrated by the MSTIP and
TDT programs provides a good example of a successful approach to prioritizing and funding
needed improvements and the value of County/City collaboration. However, its clear that
additional funding is needed to achieve long-term goals.
o Community livability remains a critical aspect to consider as transportation solutions are
developed. This includes the trend towards increased focus on health and social equity issues as
a consideration when transportation projects are proposed.
Washington County Transportation Futures Study Page A-1
Taking Stock
APPENDIX A: WESTERN BYPASS STUDY / LUTRAQ DRAFT
SUMMARY
Context/Background
The need to address north-south circumferential travel in southeastern Washington County has been
discussed since the 1950s. This discussion intensified in the late 1980